Island Identity - Consultation Summary of the Policy Development Board’s Findings

What does Jersey' mean to you?

Consultation Summary of the

Policy Development Board's Findings

Published May 2021

R.77/2021

Contents

Foreword  2 Introduction  3

Rationale  6 Process  7

Main Findings  9

Overarching Objectives  10 Specific Goals  11

Key Themes  13 Constitutional Status and Terminology  14 Uniting our Community(ies)  15 International  17 Economy  20 Finance  21 Civic Engagement and Citizenship  23 Education and Research  26 Parishes  27 Language  28 Heritage  29 Culture and the Arts  32 Built Environment and the Public Realm  33 Natural Environment  36 Sport  37

Next Steps  39 Opportunities Identified  41

F

ForewoAvarnt-pdropos

Whether you have recently arrived in Jersey or can trace your family back over many generations, all of us who love this Island know that we are part of a special and unique place, but one that cannot be taken for granted.

Jersey has a rich, distinctive cultural heritage with a long history of innovation. Its constitution is a unique product of that heritage and history. We have been further enriched by the contribution of many immigrant groups and communities. The things that we feel make us Jersey' are many and varied.

I hope that everyone who feels the privilege of living in this island will engage in the conversation about what it means to be a part of this community, what makes us unique, what we should value and defend, the principles that we should uphold as defining the best parts of Jersey and its people.

In working together to shape our understanding of island identity and to enhance our international personality we can be proud of our island, and maintain it for future generations.

Tim Le Cocq

Bailiff February 2021

3

Introduction

Întroduction

What makes Jersey special and why does that matter?These two simple-sounding questions underpin the creation of this report. If we can provide satisfactory answers to them, we can also begin to see how our Island's distinctive qualities can be recognised afresh, protected and celebrated. We can help educate our citizens and the wider world about our unique constitution, history, environment, culture and community. We can take advantage of the opportunities they bring, and enjoy the economic and political benefits of a more confident and positive international personality. Most of all, we can foster engagement, pride and inclusiveness, and hand these down responsibly to future generations through the sense of identity that embodies them.

However, these questions of identity – how we see ourselves and how others see us – are actually far from simple. Jersey is bursting with stories to tell. But none of these stories alone can tell us what it means to be Jersey. And Jersey is changing – both for the better and in some respects for the worse. The task of the Island Identity Policy Board has not been to look backwards and attempt to preserve our unique essence, but to shine a light on its many strands and look at the different ways they can be woven together in the future.

This is not a branding exercise. It involves searching our soul, engaging with difficult issues, and asking not only who we are but who we want to be in ten, fifty or a hundred years. This will allow us to take an active role in shaping our future, rather than just responding passively to signals from the global marketplace, or unthinkingly following UK policies that are ill- fitted to our context. And I believe that success must start with a confident understanding that Jersey's unique history and personality qualify it as an Island nation in its own right, a country entwined with but not bound by the paths of the other nations of the British Isles. Our future is ours alone to shape.

The Island Identity Policy Board and its many interlocutors have spent considerable effort examining these questions. This document summarises our findings so far, and thus distils the ideas, aspirations and wisdom of perhaps one hundred people. Lovers of Jersey, leaders in their fields; I am grateful to every one of them for their time and effort. However, we don't presume to have found the answers to those two simple questions, but to have helped to frame them and to kick-start the debate. The next stage – and the aim of this summary document – is to put the ball in your court.

Whoever you are, whatever you do, please ask yourself two questions as you read this. First, do you agree with the ideas we are advancing? Tell us what we've got wrong, and what we've missed. Articulating and debating questions of our national identity is an ongoing process not a one-off exercise, and the issues (and answers) will evolve over time.

Second, please ask yourself what you can do to further the objectives set out below. We all wear many hats professionally and personally. We are all ambassadors for Jersey when we are abroad. This is NOT just a policy paper for policy makers, although the Government Plan recognises its central role in guiding the future decision-making of politicians and civil servants. But in whatever capacity you make decisions – in your communities, parishes, schools, hobbies, businesses, homes, travels – please think how you can help make Jersey more cohesive and civically engaged, more knowledgeable and proud about itself, and better recognised internationally.

I'd like to thank all those who have contributed to this work so far, especially my Island Identity Board panel, through extremely difficult times. We still face considerable uncertainty in the future, but in my view the topic of our identity and international personality – what Jersey means to you and to others – is a fundamentally optimistic and forward-looking one. And it is in that spirit of optimism that I now say "Over to you!"

Carolyn Labey

Deputy of Grouville , Assistant Chief Minister,  Minister for International Development

Rationale Raisonn'nie

Our national Identity – how we see ourselves and how others see us – matters a great deal. In Jersey, our ability to work together, care for each other, grow our economy and look after our environment depends on us being bound to each other by more than a shared geography and set of rules. Whatever our backgrounds or occupations, we can benefit from a shared sense of belonging and a shared understanding of what it means to be Jersey.

Internationally, our long-term future relies on projecting a positive image of the Island; a richer international personality than just that of our world-class finance industry. Our unique history and constitutional status, and our extraordinary endeavours in other fields (culture, heritage, philanthropy, international development, sport, business, art, digital, agriculture, tourism and conservation, for example) should also be recognised as part of this personality. Coordinating and projecting these facets of our Island identity will help us build the reputation and relationships we will depend on to thrive in a globalised world.

Why is now the right moment to prioritise these issues? Firstly, there is a profound and almost universally-shared sense that what we have in Jersey is special and worth protecting, yet also a widespread feeling that something is being lost. How can Jersey change with

the times, embrace diversity, remain a welcoming place for immigrants, and play its part

in an increasingly interconnected (and homogenous) world, yet preserve and nurture its uniqueness?

Secondly, there are some very practical reasons to examine our identity at this particular moment. Big global issues such as the changing relationship between the UK and Europe post-Brexit, rapid technological advances, the global Covid pandemic, and the increasingly urgent need to avert or mitigate the impact of climate change will all likely result in changes to the way we associate, work and prioritise things. At the same time, there is great opportunity to diversify and innovate, as other British nations such as Scotland and Wales are attempting to do with far fewer political and constitutional freedoms than we enjoy. The way Jersey positions itself now will affect the way we respond to these challenges and opportunities.

7

Process

Procéduthe

The Government recognised the importance and urgency of examining how Jersey's distinctive qualities could be more systematically celebrated and deployed for the benefit of the Island. In October 2019 it convened a Policy Development Board to consult a wide range of opinion about how we see ourselves and how others see us, and what might make this identity more distinct, coherent, inclusive and positive.

The Policy Board was composed of 12 Jersey citizens of different ages and backgrounds, and was chaired by Assistant Chief Minister Carolyn Labey . It was impossible to ensure all viewpoints were represented in a sample this size, but between them the Board embodied numerous strands of Jersey life, including politics, the arts, business, finance, journalism, foreign affairs, law, creative industries, heritage, education, language-teaching and public administration.

Over a period of ten months from October 2019 the Board met ten times, interviewing or consulting numerous members of the public, experts in different fields (such as marketing, policy-making and diplomacy) and the leaders of ten key Jersey institutions. It also examined existing government strategy documents and reports, the (limited amount of) research conducted into public attitudes towards identity, and similar exercises conducted by other countries.

From March 2020, the Covid pandemic led to restrictions on movement and assembly, and the reassignment of key supporting staff to emergency operations. This caused severe disruption to the planned programme of consultation. Nevertheless, thanks to

the dedication of those involved in the project and the importance attached to it by the Government, some work continued – the only major piece of long-term policy development to do so. Aware that there were many other views and voices still to hear, in the summer of 2020 the Board decided to begin circulating an interim draft of its proceedings to stimulate further debate and provide some useful signposts for the formulation of the Government Plan 2021-24.

This paper is the third iteration of that summary document. The Board's initial findings have now been both endorsed and considerably enriched by new voices from the world of business, politics, law, sport, culture, media and finance, and from a handful of individuals who have made other distinguished contributions to Jersey life in recent years. The plan now is to widen the debate to the general public, while at the same time assisting policymakers to internalise and begin putting into practice the objectives and ideas which this exercise has already generated.

Main Findings

Èrmèrques Prîncipales

Overarching Objectives

Cliés d'la Votte

The Board settled on three primary objectives for this work: overarching goals representing where we want to get to (and against which success may ultimately be measured). They were chosen to have the broadest appeal to Islanders and organisations, and consciously reflect the aims of many existing organisations.

The first two embody the two main aspects of identity discussed above - how we see ourselves and how others see us:

1. People living in Jersey are civically engaged and proud of their Island
2. Jersey has a recognisable and positive international personality

The third objective underlies these, and although it could also be construed as simply a means to achieve them (and therefore more at home in the Goals' section below) it was felt to be sufficiently important in its intent and implementation to be highlighted as an end in itself:

3. Public policies coherently support and develop Jersey's distinct identity

All those whose work has an impact on our identity are encouraged to reflect on how their activities advance - or could be advanced by - these three overarching aims.

Specific Goals

Întentions spécifiques

Over the course of its consultations the Policy Board identified seven more-specific goals which it felt would further the overarching objectives listed above and serve to nurture and celebrate our Island identity. These begin to point to some more concrete outcomes while still having applications across the breadth of public life and a range of policy areas.

1

Conserving what makes Jersey look and feel unique and expresses our distinctive character and heritage

2 Improving public awareness of our constitution and history,

including understanding ourselves as a country, or small Island nation

3

Nurturing a stronger sense of citizenship and engagement in public life

4 Addressing alienation and social exclusion, and ensuring

all Islanders feel the belong in Jersey whatever their background

5

Expanding the international narrative about Jersey

6 Developing Jersey's distinct international personality,

separate from that of the UK but with strong connections to Britain, France, other European countries and the Commonwealth

7

Celebrating and better promoting what we do well

Again, readers of this document are invited to consider how these goals might be applicable to their areas of interest, how they might advance them in different ways, and how they might coordinate with those involved in other sectors.

Key Themes

Thèmes dé l'Avant

Constitutional Status and Terminology

Constitution en Êtat et Patholes

It is widely understood that Jersey is a Crown Dependency' although confusion exists about what that exactly means. The Island is not a fully sovereign country, with the UK being responsible for defence and formal international representation. Otherwise however, Jersey has a significant and growing degree of autonomy, including over all domestic and fiscal matters and the Island increasingly represents itself in foreign relations. This autonomy dates back to 1204 and has been affirmed in a line of Royal Charters, legislation and Court cases all of which are studied by lawyers qualifying to practise Jersey law. It is worth noting that few islands in Europe have more autonomy than Jersey.

The majority of Islanders travel on British passports as British citizens. . The Jersey Customs and Immigration Service issues specific Jersey variant British passports which make clear that Jersey is not part of the UK.

Most Islanders know that Jersey has its own parliament, government, ministers, legal system, judiciary, taxes, language, international UN country-code, credit rating and bank notes. However, outside the Island most people are unaware of these national attributes, and it is therefore commonly assumed Jersey is part of the UK, an error the Government of Jersey could do more to correct. Even within the island there is a tendency to use the word local' to describe Jersey and national' to refer to the UK. Furthermore, while at pains to point out the huge contribution made by English civil servants, several Board members and interviewees lamented what was frequently termed the creeping Anglicisation' of Jersey's governmental institutions, a tendency to model processes and policy-making on Westminster and Whitehall (or even English local government), and to import senior functionaries rather than to develop our own. The Board concluded that Jersey is accurately described as a Country', or even as a Small Island Nation', and as such has a distinct international character. This has been agreed with the UK and by constitutional experts, and in 2007 the Lord Chancellor and Chief Minister signed an agreement entitled Framework for developing the international identity of Jersey', which also acknowledges that Jersey's international identity' is different from that of the UK. However, legally-speaking the term identity' has no defined meaning; the appropriate term for a country is personality', and this report adopts that usage throughout when describing how we are viewed internationally.

This is not a move towards independence for Jersey. Our nationality is definitely British. But just as Scotland and Wales are most definitely nations while the Scots and the Welsh remain British nationals, using the language of international personality and nationhood to describe Jersey could bring significant benefits. These include a stronger and more confident sense of identity, greater clarity in our international engagements, a stronger voice for the Island's interests in international negotiations like Brexit, and higher levels of social and civic engagement. Other non-sovereign jurisdictions such as the Isle of Man and Bermuda already use this terminolgy, with National Galleries and National Museums. The Board came up with examples where this could be applied in Jersey, including describing Liberation Day as a National Day and the States of Jersey as our National Assembly. It also suggested that an official Jersey Constitutional Language Guide could help people use the correct terminology.

Uniting our Community(ies)

Unnissant en C'mun

International

Întèrnâtionnale

The word Jersey' means different things to different international audiences. To foreign visitors to the Island it may conjure up green lanes, beaches, and the well-preserved architectural remnants of centuries of trade and war. To global businesses it may mean blue-chip financial, legal and accounting services. For gastronomes it could be Michelin- starred restaurants and the world's best potatoes. In the world of fashion it's a type of knitted fabric – another reminder of one of our former boom industries. To an African farmer Jersey almost certainly just means one thing: a really good dairy cow. To many, of course, Jersey is most closely associated with offshore finance, which (as discussed below) comes with reputational challenges to overcome, as well as positives.

Jersey's international personality is extremely important to its economic future, and also influences the way Islanders perceive themselves. Jersey is by no means a one trick pony', yet some Policy Board interlocutors felt that the popular international view of the Island

is unfairly negative and one-dimensional compared to similar pro-business jurisdictions such as Singapore, Switzerland and Ireland. In the long term, the Board concluded that the sympathy and regard in which we are held internationally, and our own sense of national pride, depend on us being known for more than tax neutrality and financial services.

The Board proposed several ideas to strengthen Jersey's international personality, and demonstrate the many ways we act as a force for good in the world in addition to facilitating its commerce and investment. The first is simply that we should do more to highlight and celebrate our distinctiveness as a country, promoting the fact (in the words of the 2007 agreement with the UK's Lord Chancellor) that Jersey has an international identity that

is different from that of the UK' and that we are a stable and mature democracy with its own broad policy interests and which is willing to engage positively with the international community across a wide range of issues.'

This involves better explaining our constitutional status, and also identifying which international organisations (such as UN and Commonwealth bodies) and agreements we are currently signed up to and where we need to increase our representation. Currently, our relationships with international organisations varies from full membership to observer status to a situation where we struggle to be heard at all. Frequently Jersey requires some form of permission from the UK to exercise its international personality, but the situation is extremely confusing and there is currently no central record of which treaties or agreements apply to us (although this work is underway). This hampers our ability to be heard, not only in matters such as trade and tax but across a wide range of international issues, from biodiversity to human rights, from climate change to medicinal cannabis.

The message that we are a distinct polity which takes its international personality seriously would also be assisted by recreating an independent External Relations department. At present, the department is folded into a larger less-focused department. No other country conducts its diplomacy through an Office of the Chief Executive', and as one former Minister noted, this makes us sound like a UK local authority.

The Board's second strand of ideas involved changing and expanding the narrative about Jersey. If the slur of tax haven' must be lived with for the foreseeable future, let others also associate us with dairy cows, fintech, philanthropy, conservation, impact investment, Jèrriais, international development, innovation, and a unique blend of French, English and other cultures. The Board observed that External Relations already runs several laudable initiatives to project a more holistic and positive image of the Island abroad, although noted with concern that its dedicated Bilateral Programme Fund' which funds many of these was under threat financially. The Board also commended the work of Jersey Overseas Aid in demonstrating the Island's credentials as a good global citizen, particularly as its new areas of focus (Dairy, Conservation and Financial Inclusion) so closely reflect three of Jersey's existing strengths.

The Board recognised that many Jersey institutions can also project soft power', including Parishes, sports clubs, schools, environmental charities, and organisations involved in arts, heritage and culture, and suggested these efforts be supported and coordinated more systematically. Two simple ways of contributing to this would be to develop specific materials to assist outward-facing bodies to tell a coherent and positive story about the Island, and to expand the nascent Jersey Ambassadors' initiative to more locations and more sectors, involving figures from the worlds of sport, business, hospitality and the arts. There is a large reserve of goodwill towards Jersey among the Island's diaspora and those who have lived or worked here, which can be nurtured and utilised.

Economy

Êcononmie

Our national identity is influenced by the livelihoods people pursue, but also itself plays a part in our long-term economic success and prosperity. Global competition for a share of the world's consumers, investors and talent is intensifying, with greater awareness about a place's image increasingly shaping people's decisions about where to live and the origins of the products and services they buy. This does not just include our well-known quality-of-life attractions such as connectivity, safety and natural beauty, but also the picture we project of our culture, history and values, and the commonality we feel as a society. The Board noted growing academic evidence that small jurisdictions with strong identities are more economically successful. It therefore examined some of our unique economic selling points, and sought out ideas that might promote growth and innovation in ways that are compatible with the long-term maintenance of a strong and distinctive national personality.

Jersey's traditional industries of farming and fishing are not just important to the island as a source of income and jobs, but form a vital part of our heritage and of how Jersey is seen by the rest of the world. Jersey's farmers have been conquering new international markets with our Jersey Royal' since the 1880s, and our milk and ice cream is now a luxury brand in both developed and developing countries. Meanwhile our fisherman have been exporting produce to the Continent since the 12th century (the French even borrowed their word for octopus from Jèrriais), and dominated the Grand Banks cod trade for over 100 years. The Board therefore saw continuing support for agriculture and fishing as vital, and emphasised the value of promoting Jersey's offering at the high-quality end of these markets. This is the place we already occupy in terms of dairy products, potatoes and fresh seafood, but opportunities also exist for products like cider, black butter, and medicinal crops.

Tourism is another sector in Jersey with a distinguished history, although the encouraging recent increases in visitor numbers has been brought to a halt by the pandemic. The Board examined a number of possible niche tourism opportunities for the Island, but its main message is that better celebrating Jersey's unique culture and heritage – and its distinctiveness from the UK – will help attract visitors. The Board also hoped that transport links with France could be strengthened, and suggested that more attention be paid to promoting our Island identity at the Ports of Entry.

The Board also considered Jersey's non-traditional industries, and highlighted the particular opportunity presented by Digital. For centuries Jersey has innovated and reinvented its economy, and in recent years the Island's human capital, superior connectivity (including being the first country in the world to roll out optic fibre connectivity to every home) and entrepreneur-friendly ecosystem has spawned a rapidly-growing digital sector. This now employs over 3,000 people and generates more than £180 million per year. Small and agile digital businesses address unique market niches, and there is also significant overlap with Jersey's thriving creative industries. Opportunities exist to further Jersey's value as a test bed for new products, and to replicate Digital Jersey's highly-successful Sandbox' model in other industries. Additionally, as mentioned below, establishing a specialised University or university campus in Jersey could contribute to developing and retaining talent.

Finance

Finnance

Any attempt to articulate Jersey's identity must examine the impact of its half century at the forefront of the international financial services industry. This is a complex issue which generates strong and conflicting opinions, both internally and externally. On the one hand, offshore finance acts as a conduit of investment that lifts people out of poverty and creates jobs and infrastructure. Furthermore, Jersey is now one of the world's best-regulated financial centres, working to recognised global standards, offering secure international access to financial markets and sharing confidential information responsibly with other jurisdictions. On the other hand, offshore finance is the target of sustained, orchestrated campaigning, with pejorative labels such as tax haven' colouring several related debates such as the impact of finance-sector salaries on prices and inequality within Jersey.

The Board found that there is pride that an Island of 100,000 people punches so far above its weight in the financial world, but also a degree of defensiveness about our main source of income, and exasperation that outsiders routinely assume that everyone from Jersey must also be personally wealthy. It also sensed in some quarters a feeling of otherness' to the finance industry, even though so many Jersey people are part of it. The Board felt more could be done to ensure that those who make Jersey their home while working in this sector feel engaged and included in Island life. These welcome migrants from the UK and further afield – and indeed all who move here for work assignments - can become some of the best ambassadors for the Island when their time comes to move on (see also International).

In terms of Jersey's international reputation, the Board noted with interest how our finance industry is now making significant strides in the fast-growing area of sustainable and responsible investment, deploying capital to have a positive impact in Environmental, Social and Corporate Governance (ESG) terms as well as making a profit. Jersey Finance has recognised the importance of this direction of travel and is leading initiatives to make the Island an even more attractive jurisdiction to do this kind of business. The Board hopes that the Government will support these efforts, as well as those to develop Jersey's already substantial offering in the administration of philanthropy. Coupled with the growing reputation of Jersey's international aid programme and opportunities in development finance, there is an exciting chance to promote the Island as a jurisdiction focused on doing well by doing good'.

Civic Engagement and Citizenship

Engagement Civique et Citouoyenneté

People in Jersey are actively engaged in helping each other. There are more than 500 voluntary and community organisations active in Jersey, and 11,000 islanders volunteer their time. The recent Covid emergency saw an overwhelming response from Islanders keen to assist those in need. The OECD's Better Life Index places us in the top 10 of out of over 400 OECD regions in the category of Community'. However, voter turnout in elections is extremely low, and few people understand themselves as citizens' of Jersey, with the commitment, responsibility and pride that this word can imply.

Citizenship is an issue distinct from nationality, and is it not exclusive. An individual in Jersey may legitimately identify themselves as a British citizen, a Jersey citizen and a Polish national all at the same time. The Board proposes that to call oneself a Citizen of Jersey should come to mean something; the word Resident' is insufficient and implies a temporary arrangement (people reside' in care homes). Nurturing the concept of Jersey citizenship through official communications, education at school (and for newcomers to the Island) and citizenship ceremonies can instil a common sense of belonging and participation. It can equip Islanders to act as informed Ambassadors for Jersey abroad (see International). Additionally, educating school children and the general public about the political system in Jersey and the work of the States Assembly could increase voter turnout and involvement in public life.